Permanent Shelter Strategy for Landslide Affected Families in District

Piyal Ganepola, Technical Advisor, The Asia Foundation (TAF)

Abstract.Over 450 families in the 1. Background and Divisions were displaced due to a series of landslides caused in Walapane and Hanguranketha Divisions of January 2007. The Divisional Secretariats of the in , where the respective Divisions had to face the challenge of landscape is very undulating with steep slopes resettling these families at alternative locations are frequently affected by landslides. Unusually but were confronted with severe resource heavy rainfall in mid January 2007 has caused constraints to cater to the demanding needs of series of landslides in these areas causing these resettled communities. immense damage to human life and properties. Creating Opportunities for Economic Revival and Over 450 displaced families in Hanguranketha Development in Nuwara Eliya (CORD) Project and Walapone Divisions were resettled in 6 was implemented by The Asia Foundation locations by the respective Divisional Secretaries (herein referred to as the Foundation) in the (DS). 198 Families in Hanguranketha were Nuwara Eliya District of Sri Lanka, between June resettled at a land called Johnston Estate and 2008 – June 2009, under a grant agreement with others from Walapone were resettled at the Australian Agency for International Rockland Estate (92 families), Danilow Estate Development (AusAID). Through CORD, the (77 families), Mahauwa watta-Egodakanda (16 Foundation has assisted the divisional families), Nildannahinna (42 families) and secretariat (DS) offices in Hanguranketha and Theripehe-Galthotamulla (45 families). Walapane as well as the Nuwara Eliya District Secretariat to improve their disaster management capacities and to make the disaster responding processes more efficient. CORD made its entry by helping the affected communities and the local administration to address the crucial issue of permanent shelter in the resettled sites. CORD has also addressed wider institutional and policy constraints by involving national institutions -- the Disaster Management Center (DMC) and specialized agencies such as the National Building Research Organization (NBRO). The Foundation has also formulated a set of policy guidelines that will influence future government-assisted landslide relief and rehabilitation support mechanisms. Source: Production of Humanitarian Information Center, Sri Lanka CORD has made remarkable progress in a relatively short period. This report describes the Under the Creating Opportunities for rational process introduced by CORD and its Economic Revival and Development in achievements in accelerating post disaster Nuwara-Eliya’(CORD) Program , The Asia rehabilitation and development with community Foundation (the Foundation) has provided participation – notably with regards to shelter assistance to the Nuwara Eliya District and livelihood. Secretariat and Walapane & Hanguranketha Divisional Secretariats, to accelerate the Keywords .Landslides , Permanent shelter, rehabilitation and development initiatives that have been undertaken by the respective Resettlement, Participatory approach divisional secretaries to resettle these affectedcommunities. Disaster Management Center (DMC) and National Building Research Organization (NBRO) havepartnered with

TheAsia Foundation in implementing the program.

houses. The settlers too were in desperation in the absence of any hope to regain their homes and livelihoods.

Through CORD, the Foundation improved the capacity of the District Secretariat, Divisional Secretariats and community-based organizations in Walapane and Hanguranketha to work together to ensure the sustainable resettlement of landslide-affected families and incorporate principles of disaster risk management into local- level planning and development. The CORD project promoted citizen involvement in the resettlement and rehabilitation process, and addressed broader institutional and policy Fig 01: Cracked Building due to Earth Instability constraints through engagement with national- level institutions responsible for different aspects The government assistance offered to these of disaster management. resettled families were limited to a land plot of 20 Perches (500 sqm), 28 roofing sheets and a financial grant of Rs.50, 000.00 which was 2. Resettlement Sites released in 3 installments. The above assistance alone was not at all sufficient for these families to Foundations’ support through CORD was offered build their permanent houses. to resettled families in Johnston Estate Hanguranketha and 3 settlements from The lands allocated for resettlement are unfertile Walapone namely, Rockland, Danilow and abandoned tea estates. Majority of families who Egodakanda. The number of families in actual made their living through farming in their fertile occupation was less than the numbers originally lands at the previous habitat have lost their resettled when the program started, as some means of livelihood too at the new location. This families have gone to live with the relatives as has resulted in substantial number of families to the living conditions at the new sites were too return to the previous habitat, ignoring the harsh. Some others have returned to the original warnings of the authorities on possibility of future settlement where landslide has occurred. landslides.

By the time the Foundation commenced the site HANGURANKETHA: Hanguranketha, Johnston work in September 2008, the relief and estate resettlement was the first project rehabilitation phase was completed and people undertaken by the Foundation under the were shifted from transit camps to permanent program and was developed as a pilot project for relocation sites nearly one year back. But the testing the development strategy designed by affected communities were still remaining in the Foundation. The successful results from this temporary houses or tents on the plots they were project were subsequently adapted to 3 allocated. Amidst some ad-hoc efforts made by settlements in the Walapone Division through the the community members as well as numerous Palm Foundation. agencies and institutional partners to meet the needs in the resettled locations, nearly two years Johnston Estate: The Johnston Estate site is of efforts have not yet proven to be effective to located about 1.5 km away from the ensure that the communities be move into better Rikillagaskada town, in an abandoned tea housing in the near future. Coordinated plantation now in barren state. Topography is approach to meet the demanding needs of consisting mainly with lands of moderate slopes resettled families was not in place. and some highlands with steep slopes, and At the time the Foundation made its entry, the environmentally sensitive areas unsuitable for local officials were in a confused state without habitation. Rock boulders are scattered all over feasible solutions and resources to meet the the site. Soil appears suitable for housing, in needs of the settlers, mainly permanent shelter. terms of bearing capacity requirements. The District Administration had a type plan of a Relocation has been done based on a layout house in possession with an estimate of Rs.500, plan prepared by a land surveyor, prior to NBRO 000/ per house and was looking up for a detailed investigations. heavenly source to provide funding to build 400 DS has allocated 198 land plots to displaced Rockland Estate: This is among the earliest families, but by the time CORD made its entry in resettlement sites of Walapone, and by the time September 2008, there had been only 72 the Foundation entered, 74 settlers (out of 92 families occupying the land plots. 70 of them allocated) have commenced shelter activities were yet living in tarpaulin tents. The others have with the assistance from the state and with some not come to occupation by that time, due to very additional support of a NGO. However, the hard living conditions prevailed due to lack of quality of construction was far to reach the shelter and basic infrastructure. Other reason accepted standards. Some houses showed was the lack of means of traditional livelihood. serious signs of distress while many others demanded minor to moderate structural improvements. Hence, the Foundation had to intervene in helping the people to improve structural stability of the constructed houses-

retrofitting.

Egodakanda: The situation of 16 families was very similar to that of Rockland Estate.

3. Shelter Development Fig 02: Small Shop Owned by a Resettler One of the main outputs of the program was the The settlers had to fetch water from nearly a permanent shelter strategy, which created the kilometer away as the bowser supply arranged gateway to reach the communities and the by the DS was not regular. They have built bureaucracy. CORD followed the well tested make-shift toilets using cadjan and polythene participatory, incremental shelter development with squatting pans donated by a donor. In the strategy followed in several successful housing absence of power supply, lighting was confined programs in Sri Lanka, with some value addition to kerosene bottle lamps which were later features introduced through improved supplemented by solar lanterns provided by technology. IOM. The approach taken here is improving the By the end of the program end of June 2009, capacities and skills of the resettled families to number of settlers has increased to 140 from the improve their own shelter development original number 72 and was yet in the increase initiatives. Under this approach, novel strategies due to the encouragement created on seeing the to meet the peoples’ shelter aspirations within rapid development. Over 100 of them have made the available means were piloted first at substantial progress in building their permanent Johnston estate resettlement. The successful shelters. results from this projectwere subsequently WALAPANE: Implementation of Walapane was adapted to 3 settlements in the Walapane through Palm Foundation and this arrangement Division. offered an additional benefit to the settlers to receive the benefits of Palm Foundation’s micro finance program which they combined with IOM 3.1 Principles implemented livelihood program. The strategy was developed based on the Danilow Estate: This resettlement was the following principles considering sustainability; latest project resettled by the Walapone DS, started in February 2009, and the strategies • Community centered- enabling the tested in the pilot could be applied straight away communities to manage their affaires with at this site. The Foundation support available facilitation by the stakeholders. CBO from the beginning of the project was an strengthening is an important element incentive for all the 72 resettled families to which finally resulted in creating remain in the site and commence building their empowered communities to win their own homes immediately. All 72 families in the equity rights in the society and exercise settlement have achieved very good progress in their responsibilities towards sustaining building their permanent shelters. new settlements.

• Participatory approach to address their  CBOO will be the focal point. specific shelter needs and to strengthen their self initiatives without creating  Affordable to the people and to the state dependency on state or the other donors.  Options to select • Supporting to enhance the indigenous skills of the beneficiaries, utilize the  Encouraging incremental development resources they posses and enhance their  Avoid recurrence of disaster livelihood opportunities.  Housing connected to livelihood • Several housing options (house plans) were offered to select based on their  Environmental friendly individual affordability and taste with the possibility of incremental development .  Owned by people- coordinated and monitored by state • Creating the feeling of the ownership of the program and assets collectively and  Consultative and sharing among individually, and recognizing the state and stakeholders other stakeholders as facilitators in the development process.  Livelihood supportive construction process. • The State, through the Divisional Secretariat in collaboration with Local  Long term management considered. Authorities expected to play the roles of coordination, monitoring and regulation . 3.2 The Process • Multitude of partners who include relevant State organizations ranging from Central The shelter process was started by conducting a Government, Provincial, District, Divisional survey to identify the resources of the individual and Local Authority and NGOO/INGOO families possess, mainly materials and skills. are involving in a consultative process Some of them salvaged materials like roof with CBOO of the settlements in planning timber, tiles, doors and windows from their and implementing the projects and by previously damaged house. Though there had sharing their resources. been very few members with good skills in carpentry and masonry many have shown ability • Environmental consciousness is a key to involve in such work with little training. This focus through which recurrence of survey was important to identify the resource landslides in the new settlements are gaps of individual families which helped The Asia prevented by awareness creation on the Foundation (TAF) to fill such gaps through good land development practices. different forms of assistance without having to resort to uniform type of a package insensitive to • Technology options introduced have the individual needs. linkages to Livelihood support. The families are trained to produce low cost, In the assessment to identify technologies environmental conscious building products appropriate to the area, it was observed that and in construction techniques, offering people are familiar with earth based technologies them opportunities to continue such like sun dried bricks. Fire wood was scares and activities as alternative livelihood means. expensive for burning the bricks. More over, there existed an important need to discourage • Education of families on rights and use of firewood for environmental reasons. Few responsibilities, individually and have started to sledge rubble from the boulders collectively, on issues on long term in the site using indigenous methods. Sand was maintenance combined with ensuring scarce and expensive. local authority service delivery. The process and new technologies were SUSTAINABILITY PRINCIPALS OF THE proposed based considering the above APPROACH parameters and with affordability in mind. The proposals were always explained to the  Families participating in planning and community members at CBO meetings and their implementation willingness to participate was obtained. Those who opted to deviate from using the proposed integrated and coherent action plan to develop new technologies were too provided with the resettlement sites with appropriate disaster technical advisory to improve the quality of resilient safeguards. construction. Alleviating recurrence of landslides and creating structural stability to resist the high Other than the above formal arrangements, winds in the area were too important many training sessions held for the District, considerations. Divisional, Provincial and Local Authority officials with Central level resource persons created The basic activities in the shelter development opportunities to interact closely with each other process piloted were as follows: eliminating the distances they had earlier.

1. Strengthening the Coordination The Foundation created a friendly atmosphere Mechanism among all the stakeholders through creating coordination forums to share information. 2. Mobilizing trained Field Officers to Distance existed between the Divisional coordinate activities and provide advisory Administration with central level organizations services like National Building Research Organization (NBRO) and Disaster Management Center 3. Development of guide plans and material (DMC) in operational level too was closed by this lists to suit the different site conditions and coordination strategy. tastes. The above approach of the Foundation brought 4. Introducing low cost, eco friendly and in a synergy among the different programs of structurally sound technologies. different NGOs. For example, Palm Foundation linked their micro credit program to the IOM 5. Building a model house. conducted livelihood program by providing credit facilities to meet the running expenses of 6. Skills enhancement enterprises where IOM supported the capital

7. Material support to individual needs to fill expenses. gaps.

3.4 Mobilizing Field Coordinators (FC)

3.3 Strengthening the Coordination The Foundation, at the very inception appointed Mechanism a fulltime, trained, Field coordinators to the sites who guided the families in organizing together An important activity has been the convening of towards collective activities and community multi-stakeholder forums at the district and surveillance in preventing ad-hoc excavation of divisional level. The Foundation assisted the embankments which could lead to future District Secretary in Nuwara Eliya to revive the disasters. District Disaster management Committee to plan medium- and long-term interventions to support Initial observations made by the Foundation at the landslide-affected communities through its site revealed the need of a field coordinators. disaster management focal points. The families were allocated land plots to resettle by the Divisional Secretariats but no system was In addition to the District Forum, The Asia in place to provide them with guidance to do the Foundation supported the two Divisional development activities. In spite of Secretaries of Hanguranketha and Walapane to recommendations of the NBRO on the need for convene regular Divisional Disaster Coordination careful excavation of plots and toilet pits to Meetings, which created a common platform for prevent the geological stability of the fragile all the stakeholders to plan together and work landscape, the people were seen excavating towards a common goal. their plots in ruthless manner. The NBRO instructions have not been communicated to the Success of the approach lied with the community. On identification of the need to Foundations strategy in accepting the lead role regulate such activities the Foundation appointed of the District/Divisional Secretary and resident field coordinators, who were given supporting to meet the capacity needs and to training by NBRO to guide the community in the develop an effective coordination mechanism. proper excavation in site preparation. The same Through these district and divisional forums, the Field Coordinators received training inFigure 3: Field Coordinator helps a family Foundation initiated a process to formulate an technology too from the National Engineeringto manually compress SCEB Research Development Center (NERD) and accompanied a material list enabling the people other trainers to assist the communities by to plan the work. introducing new technology. The FCs were engaged in the initial surveys of the resources in The design offered the possibility for incremental the possession of the families to assess the real expansion to expand with income generation and needs for individual requirements. family expansion. A Core House area accommodating one room and kitchen with the roof area which can be covered with 28 G.I. sheets already given by the DS was incorporated within the plan. This enabled the people to build the Core House immediately and move into it in a short time. The other basic areas like verandah, living and dining, will be incrementally expanded by the families later.

The design also incorporated features to face high wind situations. Wastage of materials was minimized by coordinating the building dimensions with dimensions of components like size of a brick, size of a roofing sheet etc.

Fig 03: Guidance by the Field Coordinators 3.6 Alternative Technology

One unique feature of CORD was introduction of 3.5 Development of Guide Plans and Material alternative technologies to the affected people to Lists fulfill their housing aspirations. The selection of technologies was based on the following The Asia Foundation has mobilized the Human principles; Settlement Division of the NBRO to develop several house plans to choose according to site • Affordable to the people conditions, family needs and affordability. An architectural house plan was a new experience • Simple and produced by families to the families, which threw light to their future themselves with little training home, creating initial motivation to work with the Foundation. • Main resources can be drawn from the locality

• Better quality than traditional ones

• Eco friendly- not contributing to disaster recurrence

• Creating alternative livelihoods

During the initial site inspections it was observed that the people have started some self initiatives Figure 5: Mud Bricks produced by to fulfill their housing aspirations. Some of them locals have started casting mud bricks but were facing Fig04: showing a House plan given by CORD the problem of scarcity of fire wood to burn them. project Some have already compromised for sun dried bricks (adobes) though they posed quality The plans were developed as guide plans for the problems. The rubble for foundations was drawn guidance of the families and could accommodate from rock boulders blasted by an indigenous changes to meet the specific family method of heating and sledging. requirements. The plans incorporated the features to suit the landscape of the sites. 5 The basis of new technologies was builtupon the house plans were developed for Hanguranketha above initiatives. They were not completely site and 4 more were developed for Walapane, foreign to the people but were improved versions where the landscape was different. Each plan of traditional technologies familiar to them. This has resulted in affordable superior quality houses with maximum community participation with skill improvement contributing to alternative livelihood.

Fig07: Building the Wall using CSEB

Building of walls too is easy with adjoining blocks interlocking. Jointing between blocks is done using a thin paste of earth mixed with little Fig05: Mud Bricks Produced by Locals cement, there again reducing the quantity of cement and sand used.

Another benefit offered by CSEB is that walls made with the blocks need no plaster due to its 3.6.1 Compressed Stabilized Earth Blocks uniform surface. Walls are usually painted with a (CSEB) low cost earth based paint, which too is produced at site. CORD obtained the expertise of the National Engineering Research and Development Centre The combined effects of all the above features (NERD) to introduce CSEB . CSEB is an make this technology; improved version of mud bricks familiar to the people at site, produced with earth excavated 1. Low cost due to low cement and sand usage from site, stabilized by mixing with little amount and due to ability to work with family labor. of cement and compressed in a simple mechanical press operated manually. The 2. High quality due to higher strength and stabilization improves the strength and durability durability combined with aesthetics and of bricks. Uniformity of the bricks are assured by comfort, casting them in a steel mould compressed manually using a lever mechanism. The blocks 3. Eco friendly due to less sand usage, cement immediately after casting are placed in a covered usage (contributing to reduce CO 2) ) no need area and moistened daily for two weeks to allow of firewood for burning, the cement to harden. 4. Creates alternative livelihoods through gained

skills.

Fig06: Building the Wall using CSEB

Fig08: Annually Compressing CSEB by a Mother and Daughter

Production initially started with two block making to structural use, deforestation for machines (manufactured by NERD) and with the structural timbers can be reduced. increase of demand number was increased up to six. Trained group of three family members could • Poles are available locally and the cast an average number of 200 blocks per day. transport is minimal. The block requirement of 2200 for the ‘Core House’ they could cast in two weeks on their plot • Maintenance and modifications do not itself. generally present a problem.

• Architectural Harmony with Natural Environment 3.6.2 Round Poles for Roofing Preservation Round poles are another locally available material introduced to fabricate low cost roofs by These timber poles need to be treated in order to CORD. Thin plants among the Eucalyptus improve their durability and to keep the insects, plantations in the upcountry are removed by the fungi and other agents of decay away. The Forest Department under their forest treatment is done using used engine oil removed management plans and the round poles suitable from vehicles and it does not create a toxic for construction are selected from them. These environment. By heating the timber in a diffusion round poles are a virtual waste material. The tank for two hours and leaving it in the tank for selected round poles should be straight and the further some hours, water in the soft parts of diameter between 3-4 inches. These poles timber is replaced by oil making it durable and represent a low cost, environmentally friendly not attracted to insects and fungi. and structurally efficient resource. These poles Figure 12 : Staked treated round are naturally non-durable, but this can be polls overcome with appropriate preservative treatment.

Fig10: Dip Diffused in Johnston Estate

The diffusion tank is made in a local mart by assembling half cut oil barrels welded Fig09: Staked Treated Round Poles lengthwise, reinforced with angle irons. This tank filled with oil is placed on brick or ironsupports (Expertise offered by Mr.Lionel Jayanetti of are heated with sawdust and paddy husk as fuel, TRADA-UK is thankfully acknowledged) with poles laid dipped in oil.After two hours the fire is extinguished and once the solution has Advantages of Pole Construction cooled down, the poles are removed from the tank, stacked and wrapped in polythene or a • Poles are much cheaper (one tenth to similar material. After fourteen days, the treated one twentieth) than structural sawn poles are ready to use in the roof structure. timbers.

• Pole structures are easy to put up using simple tools and unskilled labor; construction costs therefore are relatively low

• Poles, which are generated when the planted Eucalyptus forests are thinned,

are a virtual waste material. By putting it However their instinct skills were confined to

traditional practices they have been following through generations and lacked exposure to modern good building practices. In addressing this issue, CORD offered several training opportunities to the interested individuals of the communities.

20 semi-skilled community members, from Walapane and Hanguranketha, were given training at Nuwara Eliya Technical College in Masonry and Carpentry. They were provided Fig11: Model House Roof Constructed Using with basic masonry and carpentry tools. Treated Round Polls The NERD Centre was mobilized to train the family members on the CSEB production and building. 3.7 Model Houses Community members were trained to treat round Two model houses were constructed with poles supplied by TAF using used engine oil. peoples’ participation to motivate the beneficiaries to demonstrate good building The skills enhancement created by the project is practices. Two families were selected based on opportune to the community not only to build a criteria agreed with the community. Community their own homes but also as a means alternative endorsed the proposal that the family to be a one livelihood. with children and able members to involve in construction activities. The family should show the urge to build a house by stacking the row materials to start the foundation. The other 3.9 Material Assistance criteria was that the severity that has undergone in the disaster. Technology training was This support was targeted to meet the resource conducted at these model house sites allowing gaps to reach the progress levels set by the DS the community to gain hands-on skills. office to qualify for the installments of Rs.50, 000 grant given by the government. The initial survey also helped to identify resource gaps of individual families. It was observed that many families were deprived of the grant due to their inability to reach the level of construction progress due to lack of money to buy few bags of cement etc., creating a vicious circle. In order to break this, the Foundation introduced this ‘Targeted Assistance’ scheme to help them to purchase the most critically needed items, after individually assessing the needs. This was also offered to introduce special structural features to make the structures disaster resilient.

Fig12: Model House The assistance was not uniform but aimed at meeting individual crisis situations hampering the 3.8 Skills Enhancement progress of construction. The housing committee assisted the Field Coordinator to identify needed The communities who were displaced from assistance and in procuring them. traditional villages had some instinct abilities in building work which they may have gained by The Foundation agreed with the CBO on the involving in self-help building activities in their criteria for the assistance. It was carefully former villages. Both men and women readily implemented without leading the people to be offered their time and labour to learn the new dependent on external aid. Therefore the technologies introduced by the program. It was assistance was minimal and was based on women with children who made bricks when the absolute needs that a particular individual family men went out for making a living. cannot meet by their own means .The criteria of the assistance was as follows; • The assistance should stimulate the and based on raw materials they could draw community to complete their houses from the area, thus making them affordable, yet, fast and to improve the quality. producing high quality housing. Therefore in each case a time target should be agreed with the family. This shelter development process has also • To qualify for the assistance, there resulted in creating skillful communities, opening should be clear commitment and them livelihood paths towards construction preparedness to build the house. sector as an alternative to their traditional means • The upper limit of the accumulated of livelihood. value of material assistance to be Rs.25, 000/ per family. • Assistance should be limited to construction of the core house, ie; the area that can be covered by 28 roofing sheets. • Preference should be given to the material requirements for the new technologies introduced and the elements introduced by the Foundation for disaster resilience. • Preference should be for the material needs of putting up the structure than for the finishes. • Assistance to destitute or disable families who cannot implement their construction without external help should be given when the CBO or any voluntary organization is available to help the construction. • Assistance should not be offered to support any activity harmful to the environment.

Due to the participatory character of the program, some deviations have been caused to the above criteria to meet special situations, as requested by the CBO.

4. Conclusion

CORD has successfully piloted a collective, participatory approach in assisting landslide affected communities, involving people, communities, the local administration, and NGOs. It has demonstrated a feasible approach to respond to the shelter needs of the disaster affected families in a very short time by introducing new technologies manageable by people relying on local resources, combined with improved coordination mechanisms.

The process was designed building upon on the latent skills and indigenous knowledge of the people and reinforcing mutual cooperation, which has eventually reduced the peoples’ dependency on external support. Newly introduced technologies were improved versions of the traditional technologies familiar to them